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Frameworks for Environmental Policymaking in Brazil and Chile: a Comparative Policymaking Analysis of the Belo Monte and Hidroaysén Dams

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Frameworks for Environmental Policymaking in Brazil and Chile: a Comparative Policymaking Analysis of the Belo Monte and Hidroaysén Dams University of Central Florida STARS Honors Undergraduate Theses UCF Theses and Dissertations 2016 Frameworks for Environmental Policymaking in Brazil and Chile: A Comparative Policymaking Analysis of the Belo Monte and HidroAysén Dams Robert J. Vogan University of Central Florida Part of the Political Science Commons Find similar works at: https://stars.library.ucf.edu/honorstheses University of Central Florida Libraries http://library.ucf.edu This Open Access is brought to you for free and open access by the UCF Theses and Dissertations at STARS. It has been accepted for inclusion in Honors Undergraduate Theses by an authorized administrator of STARS. For more information, please contact [email protected]. Recommended Citation Vogan, Robert J., "Frameworks for Environmental Policymaking in Brazil and Chile: A Comparative Policymaking Analysis of the Belo Monte and HidroAysén Dams" (2016). Honors Undergraduate Theses. 129. https://stars.library.ucf.edu/honorstheses/129 FRAMEWORKS FOR ENVIRONMENTAL POLICYMAKING IN BRAZIL AND CHILE: A COMPARATIVE POLICYMAKING ANALYSIS OF THE BELO MONTE AND HIDROAYSÉN DAMS by ROBERT JEFFREY VOGAN A thesis submitted in partial fulfillment of the requirements for the Honors in the Major Program in International and Global Studies in the Burnett Honors College and in the College of Sciences at the University of Central Florida Orlando, Florida Fall Term, 2016 Thesis Chair: Bruce M. Wilson, PhD Abstract A global proliferation of large dam construction since the 1950s has been accompanied by scientific research challenging the benefit of these projects while drawing attention to their numerous negative environmental and social impacts. The institutions that assess the costs and benefits associated with large dam proposals, creating policies either approving, altering, or disapproving them, collectively form what is known as a policymaking framework. Examining these frameworks allows observers to trace policies through outlined decision-making processes and can help to reveal inherent biases within those systems that may impact policy outcomes. Often, divergent policy outcomes, like the those observed in the cases of the Belo Monte dam in Brazil and HidroAysén dam in Chile, are a result of variations in the environmental policymaking frameworks of the deviating cases. The subjects of this study present similar arrangements of costs and benefits but resulted incongruous policy outcomes, specifically that the HidroAysén dam was not built while the Belo Monte dam is currently under construction. Existing bodies of literature outlining the environmental policymaking frameworks of Chile and Brazil fail to fully address the influence of external variables, including presidential influence, corruption, and electoral politics, on these cases. This project synthesizes an outline of the environmental policymaking frameworks of Chile and Brazil from existing literature and uses the divergent cases of the Belo Monte and HidroAysén dams to provide evidence for the incorporation of these external variables to better understand the incongruous policy outcomes these frameworks produce. ii Acknowledgments I wish first to thank my thesis chair, Dr. Bruce Wilson, for inspiring me to undertake this project and supporting me throughout its duration. The countless hours he has spent encouraging me and strengthening my research demonstrate his outstanding dedication and love for teaching. His mentorship throughout this process has meant a great deal to me, and I am thankful for the way it has shaped me as a student and as a person. I also wish to thank my thesis committee members, Dr. Jonathan Powell and Dr. John Walker, for their invaluable insight into the subject matter of this thesis. I cannot thank them enough for the time they have spent assisting me and for their contributions to my research and writing. iii Table of Contents Chapter 1: Introduction ................................................................................................................... 1 Dams and Energy in Chile and Brazil ...................................................................................................... 2 Methods .................................................................................................................................................... 6 Chapter 2: The Belo Monte Dam .................................................................................................... 8 Context ..................................................................................................................................................... 8 Environmental Policymaking in Brazil .................................................................................................... 9 The Belo Monte Case ............................................................................................................................. 17 Conclusion .............................................................................................................................................. 29 Chapter 3: The HidroAysén Dam ................................................................................................. 37 Environmental Policymaking in Chile .................................................................................................... 37 The HidroAysén Case ............................................................................................................................. 40 Conclusion .............................................................................................................................................. 42 Chapter 4: Conclusion................................................................................................................... 44 Works Cited .................................................................................................................................. 47 iv List of Tables Table 1: Comparative Energy Potential of Brazil and Chile .......................................................... 4 v List of Abbreviations ADIN..............Ação Direta de Inconstitucionalidade, Direct Action of Unconstitutionality AGU ...............Advogado-Geral da União, Attorney General of the Union ALRCC ..........Aysén Life Reserve Citizen Coalition BNDES ..........Banco Nacional de Desenvolvimento Economico e Social, Brazilian Development Bank CDP ................Council for the Defense of Patagonia EIA .................Environmental Impact Assessment ENDESA ........Empresa Nacional de Electricidad S.A., National Electric Company ENEL .............Ente nazionale per l’energia elettrica, National Board of Electricity FME ...............Free Market Environmentalism FUNAI ...........Fundaçào Nacional do Índio, National Indian Foundation IBAMA ..........Instituto Brasileiro do Meio Ambiente e dos Recursos Naturais, Brazilian Institute of Environment and Natural Resources IMF ................International Monetary Fund ILO .................International Labor Organization MP ..................Ministério Público, Public Prosecutor PIN .................Projecto de Integraçåo Nacional, National Intergration Project PT ...................Partido dos Travhalleros, Workers’ Party PSR ................Patagonia Sin Represas, Patagonia Without Dams REC ................Regional Environmental Commission SS ...................Suspensão de Segurança, Security Suspension STF .................Supremo Tribunal Federal, Supreme Federal Tribunal vi WD .................Water Directorate vii Chapter 1: Introduction Hydroelectric dams have played a significant role in human development and have many positive economic, social, and environmental impacts. Building dams connects markets through the development of infrastructure and can create thousands of construction jobs (World Commission on Dams, 2000, p. 99). The production of hydropower reduces the use of fossil fuels (World Commission on Dams, 2000, p. 14), providing 19% of the world's energy supply (CIA World Factbook, 2011). Dams enable the redirection of rivers, controlling flooding and improving inland transport (World Commission on Dams, 2000, p. ii). They allow crop irrigation, generate electricity, and supply urban areas with water for consumption. Humans have used dams for thousands of years and their use has grown exponentially in recent decades with new technology and increased demand from a growing global population (World Commission on Dams, 2000, p. 9). In 1949 there where about 5,000 large dams worldwide (dams over 40ft tall are considered large), but by 2000 that number had increased to over 45,000 (World Commission on Dams, 2000, p. 8). Their proliferation has given rise to an understanding that the benefits received from their implementation can come at a great cost (HLPE, 2015, p. 44). For instance, altering a river to control seasonal flooding in one area may permanently flood another area upstream. Installing a hydroelectric dam for energy production may have a positive economic impact on an urban population receiving the energy, while causing a destructive "boom" in the economy of rural populations near the dam, permanently altering the economic and cultural 1 landscape (World Commission on Dams, 2000, p. 17). The distribution of costs and benefits among different populations makes the political process around dams highly contentious. There are dams whose costs are justified by their benefits, but all too often "an unacceptable and unnecessary price has been paid" to secure the benefits of dams (World Commission
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